[Federal Register Volume 85, Number 29 (Wednesday, February 12, 2020)]
[Proposed Rules]
[Pages 7910-7916]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2020-02655]



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DEPARTMENT OF DEFENSE

GENERAL SERVICES ADMINISTRATION

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

48 CFR Parts 19, 28, 32, 52, and 53

[FAR Case 2017-003; [Docket No. FAR-2017-0003, Sequence No. 1]
RIN 9000-AN39


Federal Acquisition Regulation: Individual Sureties

AGENCY: Department of Defense (DoD), General Services Administration 
(GSA), and National Aeronautics and Space Administration (NASA).

ACTION: Proposed rule.

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SUMMARY: DoD, GSA and NASA are proposing to amend the Federal 
Acquisition Regulation (FAR) to implement a section of the National 
Defense Authorization Act for Fiscal Year 2016 to change the kinds of 
assets that individual sureties must pledge as security for their 
individual surety bonds.

DATES: Interested parties should submit comments to the Regulatory 
Secretariat Division at one of the addresses shown below on or before 
April 13, 2020 to be considered in the formulation of a final rule.

ADDRESSES: Submit comments in response to FAR Case 2017-003 by any of 
the following methods:
     Regulations.gov: http://www.regulations.gov. Submit 
comments via the Federal eRulemaking portal by entering ``FAR Case 
2017-003'' under the heading ``Enter Keyword or ID'' and selecting 
``Search.'' Select the link ``Comment Now'' that corresponds with ``FAR 
Case 2017-003.'' Follow the instructions provided on the screen. Please 
include your name, company name (if any), and ``FAR Case 2017-003'' on 
your attached document.
     Mail: General Services Administration, Regulatory-
Secretariat Division (MVCB), ATTN: Lois Mandell, 1800 F Street NW, 2nd 
floor, Washington, DC 20405.
    Instructions: Please submit comments only and cite ``FAR case 2017-
003'' in all correspondence related to this case. All comments received 
will be posted without change to http://www.regulations.gov, including 
any personal and/or business confidential information provided. To 
confirm receipt of your comment(s), please check www.regulations.gov, 
approximately two to three days after submission to verify posting 
(except allow 30 days for posting of comments submitted by mail).

FOR FURTHER INFORMATION CONTACT: Ms. Zenaida Delgado, Procurement 
Analyst, at 202-969-7207 or [email protected] for clarification 
of content. For information pertaining to status or publication 
schedules, contact the Regulatory Secretariat Division at 202-501-4755. 
Please cite ``FAR Case 2017-003''.

SUPPLEMENTARY INFORMATION: 

I. Background

    DoD, GSA, and NASA are proposing to amend the Federal Acquisition 
Regulation (FAR) to require that a pledge of assets given by an 
individual surety consist only of eligible obligations. This FAR change 
will implement section 874 of the National Defense Authorization Act 
(NDAA) for Fiscal Year (FY) 2016 (Pub. L. 114-92), codified at 31 
U.S.C. 9310, Individual Sureties.
    The revisions modify existing coverage regarding the use of 
individual sureties in support of a Government bonding requirement. FAR 
subpart 28.2 requires agencies to obtain adequate security for bonds 
when bonds are used with a contract. A corporate or individual surety 
is an acceptable form of security for a bond. Corporate sureties are 
vetted by the Department of the Treasury to ensure they are 
sufficiently capitalized and are listed on Department of the Treasury's 
Listing of Approved Sureties (Treasury Department Circular 570). 
Individual sureties are not listed on Treasury Department Circular 570; 
currently contracting officers determine if an individual surety is 
acceptable.
    This FAR rule revises the types of acceptable assets an individual 
surety may pledge and requires the Department of the Treasury, Bureau 
of the Fiscal Service to review those assets to ensure they meet 
established eligibility requirements.
    Under 31 U.S.C. 9310, when Federal law permits acceptance of a 
surety bond from a surety not subject to 31 U.S.C. 9305 and 9306 (i.e., 
an individual surety that is not a corporate surety), the individual 
surety must pledge assets that are eligible obligations. Eligible 
obligations are public debt obligations of the United States 
Government. The requirements of 31 U.S.C. 9310 are intended to 
strengthen the assets pledged by individual sureties, thereby 
mitigating risk to the Government.

II. Discussion and Analysis

    This rule proposes to amend FAR part 28, and its associated clause 
at 52.228-11, and adds a new provision at 52.228-XX. The changes 
contained in the proposed rule are as follows:
    1. A new section title is added at FAR 28.203, Individual sureties.
    2. Existing section 28.203 is redesignated as 28.203-1, and revised 
as described below.
    3. FAR 28.203-1(a). The language requiring contracting officers to 
determine the acceptability of individuals proposed as sureties is 
revised, and moved to FAR 28.203-1(c). The process oriented language at 
FAR 28.203-1(c), while not specifically required by section 874 of the 
NDAA for FY 2016, is necessary for its implementation under the FAR, 
and aligns well with the Department of the Treasury guidance and 
instructions. In addition, language is added to require that assets 
pledged by an individual surety meet eligibility requirements 
established by the Department of the Treasury, Bureau of the Fiscal 
Service. The revised text refers to the Department of the Treasury list 
of acceptable assets, available at https://www.treasurydirect.gov/instit/statreg/collateral/2018Final225 ListofAcceptable Collateral.pdf.
    4. FAR 28.203-1(b). The paragraph is revised, and broken out into 
four subparagraphs.
     28.203-1(b)(1). The three types of bonds are specifically 
cited within the text: Bid bond (Standard Form 24), performance bond 
(Standard Form 25), and payment bond (Standard Form 25A). Though this 
addition is not related to section 874 of the NDAA for FY 2016 
requirements, stating the three types of bonds enables the reader to 
quickly see the three bond types without having to look elsewhere.
     28.203-1(b)(2). The existing text referring to the 
unencumbered value of the asset exclusive of all outstanding pledges 
for other bond obligations, is changed as follows: ``The net adjusted 
value of unencumbered assets is their market value minus the margin.'' 
This change clarifies the intent and context of the valuation 
requirement. The phrase ``market value minus the margin'' is added to 
clarify that pledged assets are subject to a percentage reduction 
(``margin'') from the market value to account for a risk premium. The 
new text refers to the Department of the Treasury margin tables, which 
can be viewed by accessing an added hyperlink at 
www.treasurydirect.gov. In addition, the text in this section is 
clarified to state that the net adjusted value of the pledged assets, 
when combined, must equal or exceed the penal amount (i.e., face value) 
of each bond. Though not specifically required

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by section 874 of the NDAA, this change aligns with the Department of 
the Treasury guidance and instructions.
     28.203-1(b)(3). The name of the Standard Form 28, 
Affidavit of Individual Surety, is added. This is an administrative 
change made to meet FAR drafting conventions.
     28.203-1(b)(4). The phrase ``or contractor'' is added to 
clarify when bonds are submitted postaward. The phrase ``net adjusted 
value'' of the assets is added to clarify what is to equal or exceed 
the penal amount of the bond.
    5. New FAR 28.203-1(c) is added to clarify that the pledge of 
assets by an individual surety shall be submitted to the contracting 
officer, who will then notify the Department of the Treasury of the 
existence of the individual surety, the assets to be pledged, and the 
amount necessary to cover the individual surety bond, i.e., the 
required amount to be collateralized. If after 3 business days the 
contracting officer has not received a response from Treasury, the 
contracting officer may seek assistance from the Director, Bank Policy 
and Oversight, at 202-504-3502. This section also requires contracting 
officers to determine whether the individual surety bond is acceptable 
as to the amount necessary to cover the individual surety bond, based 
on the asset eligibility and valuation assessment from the Department 
of the Treasury. The contracting officer will then notify both the 
offeror or contractor and the individual surety of this determination. 
These process steps are integral to effective implementation of section 
874 requirements in the FAR.
    6. New FAR 28.203-1(d) is added to require the contracting officer 
to request the Department of the Treasury operations support team set 
up the individual surety asset collateral account for each contract. 
The requirements for contracting officers to contact the Department of 
the Treasury about individual sureties are additional responsibilities 
for contracting officers; however, the Department of the Treasury 
officials will be providing collateral eligibility and valuation 
assessment.
    7. Current FAR 28.203 paragraphs (e) and (f) are deleted; 
paragraphs (c) and (d) are redesignated (e) and (f) under the now 
redesignated FAR section 28.203-1. The now redesignated paragraph 
28.203-1(e) changes the text from ``competency review'' to 
``Certificate of Competency.'' The now redesignated paragraph 28.203-
1(f) allows the contracting officer to permit the contractor to 
substitute an acceptable surety when Treasury could not assess the 
asset eligibility and valuation within a reasonable time.
    8. Current sections 28.203-1, 28.203-2 and 28.203-3 are deleted; 
sections 28.203-4 through 28.203-7 are redesignated 28.203-2 through 
28.203-5.
    9. FAR 28.203-2, Acceptability of Assets, is deleted as the 
acceptability of assets is governed under the Department of the 
Treasury regulations and instructions.
    10. FAR 28.203-3, Acceptance of Real Property, is deleted as real 
property is no longer an acceptable form of collateral. As stated 
previously, this FAR change will implement section 874 of the NDAA for 
FY 2016 (Pub L. 114-82), which adds 31 U.S.C. 9310, Individual 
Sureties. 31 U.S.C. 9310 limits the security required for an individual 
surety bond to eligible obligations, which are described under 31 
U.S.C. 9303. Eligible obligations consist of acceptable collateral or 
eligible collateral. Real Property is not an eligible obligation under 
31 U.S.C 9301.
    11. The now redesignated FAR section 28.203-2 adds the phrase 
``including a revised SF 28'' to clarify that the form must be used 
when substituting assets. It also adds the phrase ``Following the 
requirements set forth in 28.203-1'' to make it clear that any 
substitution of assets is subject to the same requirements as on the 
assets originally pledged.
    12. The now redesignated FAR section 28.203-3 deletes the reference 
to the Optional Form 90, Release of Lien on Real Property, as real 
property is not considered an eligible obligation under 31 U.S.C. 9301. 
At paragraph (a)(1), cross-references are added for the convenience of 
the reader.
    13. The now redesignated FAR section 28.203-4 added at paragraph 
(a) the prescription for the new provision at 52.228-XX, and modified 
at paragraph (b) the prescription for the existing clause at 52.228-11 
to add the title of the clause.
    14. At FAR 28.204(b), the word ``lien'' is deleted and replaced 
with ``security'' to clarify the meaning of the transaction.
    15. A new FAR provision at 52.228-XX is created to distinguish 
instructions to offerors from instructions to a contractor, by 
relocating the ``offeror'' language from the existing FAR clause at 
52.228-11. The provision addresses the offeror requirements for using 
an individual surety for a bid guarantee consistent with the text in 
the now designated FAR 28.203-1.
    16. FAR clause 52.228-11 is modified to address contractor 
requirements for using an individual surety for a performance or 
payment bond consistent with the text in the now designated 28.203-1.
    17. Optional Form 90, Release of Lien on Real Property, is removed 
as real property is not considered an eligible obligation under 31 
U.S.C. 9301. These changes are noted at FAR 28.106-1, the now 
designated 28.203-3, 53.228, and 53.300(a).
    18. Conforming and minor editorial changes were made elsewhere. 
Cross-references are revised at FAR 19.602-1, 28.102-2(e), 28.204(b), 
and 32.202-4(c).

III. Applicability to Contracts at or Below the Simplified Acquisition 
Threshold (SAT) and for Commercial Items, Including Commercially 
Available Off-the-Shelf (COTS) Items

    DoD, GSA, and NASA do not intend to change the current policy on 
the use of bonds for the acquisition of commercial items, including 
COTS, found at FAR 28.103. FAR 28.103-1(a) states that ``Generally, 
agencies shall not require performance and payment bonds for other than 
construction contracts. However, performance and payment bonds may be 
used as permitted in 28.103-2 and 28.103-3.''
    DoD, GSA, and NASA do intend to apply the requirements of this rule 
to solicitations for contracts valued at or below the SAT. FAR 28.102-
1(b) gives an example of when a bond could be required for an 
acquisition under the SAT. As noted in FAR 28.102-1(b), 40 U.S.C. 3132 
requires the contracting officer select two or more payment protections 
for construction contracts greater than $35,000, but not greater than 
$150,000, one of the possible protections being a payment bond. 
Individual sureties may provide security for a payment bond in this 
situation. DoD, GSA, and NASA intend to determine that it is not in the 
best interest of the Government to waive the applicability of section 
874 below the SAT, because the new requirement will create greater 
certainty of payment for subcontractors. Applying the rule below the 
SAT will continue the FAR uniformity in the type of assets allowed to 
be pledged, whether the acquisition is above or below the SAT.

IV. Expected Impact on the Public

    DoD, GSA, and NASA have preliminarily concluded that the proposed 
rule is regulatory because, as required by law, new requirements are 
imposed on individual sureties seeking to provide bonds to Federal 
Government contractors. However, DoD, GSA, and NASA also believe there 
may be some burden reduction associated with this rule. Because the 
Government has been

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unable to identify other than anecdotal data on the use of individual 
sureties, public input is sought before a final determination is made 
on whether the rule is regulatory and whether there is burden 
reduction.
    An individual surety must pledge public debt obligations of the 
United States Government. The individual surety no longer will be 
allowed to pledge real estate or assets such as stocks and bonds, as is 
currently permitted by the FAR. At least one surety company 
specializing in Federal small business contracting cautioned about the 
impact of reducing the availability of individual sureties, stating 
that the ``individual surety is a tool to groom contractors back into 
corporate surety credit . . . it is the only method to keep small 
businesses that have credit issues . . . in business.'' Testimony of 
the Barbour Group before the House Judiciary Subcommittee on Courts, 
Commercial, and Administrative Law, March 5, 2012.
    Information on the use of individual and corporate sureties by 
Federal contractors and subcontractors is currently not centrally 
collected, so the percentage of these entities availing themselves of 
individual sureties that would no longer be accepted under this new 
rule is unclear. However, there is reason to believe the impact is 
small, relative to the total amount of construction contract spending 
for which individual sureties could be used historically. Specifically, 
DoD, GSA, and NASA attempted to determine all of the awards that 
contained the FAR clause at 52.228-11, Pledges of Assets, with a total 
obligated amount of over $35,000. This clause, which would be amended 
by this rulemaking, has historically allowed pledges of assets from 
individual sureties. Only information from DoD was available to 
determine which contracts contained this particular FAR clause. This 
was thought to be a representative, if conservative, sample, as DoD 
contracts account for 63 percent of all Federal agencies' obligated 
dollars in FY 2017, and DoD has a higher proportion of construction 
contracts that would likely contain this requirement.
    Based on FY 2017 data contained in the Electronic Document Access 
(EDA) system (the DoD official contract file system), 8,603 DoD 
contracts contained the relevant FAR clause and a total obligated 
amount of over $35,000, with a total award magnitude of $12.8 billion 
(total dollars obligated on the 8,603 contracts). These awards account 
for 14 percent of the total number of FY 2017 DoD construction contract 
awards (8,603 / 60,317 (according to data in the Federal Procurement 
Data System (FPDS))) and 66 percent of the total construction dollars 
obligated for FY 2017 by DoD ($12.8B/$19.3B (according to data in 
FPDS)). These contracts were awarded to 318 unique other than small 
businesses (1,195 awards), and 1,672 unique small businesses (7,408 
awards). However, the impact is even smaller considering that these 
contractors could be using corporate sureties, individual sureties, or 
pledging their own assets as acceptable forms of security. DoD, GSA, 
and NASA interviewed operational contracting officers at the largest 
procurement offices engaged in construction contracting--the Naval 
Facilities Engineering Command, and GSA's Public Building Service. 
Based on their responses, DoD, GSA, and NASA estimate that less than 
0.1 percent of contractors, mostly small businesses, are using 
individual sureties to meet the required bonding under contracts. 
Accordingly, DoD, GSA, and NASA estimate about 9 (8,603 * 0.1 percent) 
FY 2017 DoD contract awards accounting for 0.015 percent (9 / 60,317) 
of the total number of FY 2017 DoD construction contract awards and 
0.066 percent ($12.8M / $19.3B) of the total construction dollars 
obligated for FY17 by DoD, might be associated with individual 
sureties. Using data in FPDS and applying the same percentages to the 
59,351 of FY 2017 other than DoD construction contract awards, and the 
$12 billion construction dollars obligated for FY17 by other than DoD, 
DoD, GSA, and NASA find that 9 (59,351 * 0.00015) construction contract 
awards and $7.9 million construction dollars ($12 B * 0.00066) 
obligated for FY 2017 by other than DoD might be associated with 
individual sureties. In summary, DOD, GSA, and NASA found that this 
proposed rule is likely to impact about 18 contract awards, and $20.7 
million obligated dollars.
    To the extent that this proposed rule reduces the pool of 
individual sureties from which a small business contractor or 
subcontractor may obtain a bond, these entities have the option of 
seeking bond assistance through the Surety Bond Guarantee (SBG) Program 
operated by the U.S. Small Business Administration (SBA). Under the SBG 
Program, SBA guarantees the bid, performance or payment bonds issued by 
participating surety companies to small business contractors. The SBA 
guarantee covers a certain percentage of any loss that the surety may 
incur on the bond. The SBG Program is intended to assist small business 
contractors who are unable to obtain a bond on reasonable terms and 
conditions without the SBA guarantee. The SBA's guarantee, therefore, 
encourages the surety company to issue a bond that it would not 
otherwise provide for a small business. SBA may guarantee bonds for 
contracts that do not exceed $6.5 million, and up to $10 million if a 
Federal contracting officer certifies that such a guarantee is 
necessary (see 13 CFR part 115). Public input is being sought to help 
evaluate whether the reduction in business opportunities for providers 
of individual sureties is likely to be offset by an increase in 
opportunities for providers of corporate sureties.
    In addition, there are aspects of the rule that could reduce 
burden. For example, the new requirements will create greater certainty 
of payment for subcontractors, who are a key intended benefactor of the 
law and proposed rule. While DoD, GSA, and NASA lack data to quantify 
this benefit, this certainty should eliminate due diligence steps that 
Federal subcontractors have ostensibly been forced to take to ensure 
they will indeed be protected by a surety bond in the event of a prime 
contractor's default. As described in one law review article, this due 
diligence includes verifying with the designated financial institution 
that it is holding cash or cash equivalents in an escrow account in the 
name of the contracting agency for use in meeting the surety's 
promises. See Edward G. Gallagher & Mark H. McCallum, The Importance of 
Surety Bond Verification, 39 Public Contract Law Journal 269 at 283 
(Winter 2010).
    It is also anticipated that the Federal Government may experience 
reduced burden under the new rule. Contracting officers will no longer 
have to research individual sureties and make case-by-case 
determinations of whether securities pledged by individual sureties are 
suitable and can instead refocus their attention on higher value 
acquisition planning and management activities that take better 
advantage of their training as acquisition specialists.
    Rates of default on individual and corporate sureties are currently 
unknown, but all other aspects of a construction contractor being 
equal, it is assumed that corporate sureties provide greater cost 
avoidance in the case of default by prime contractors to both 
subcontractors and the Government. These costs could include financial 
losses on Federal projects, loss of experienced subcontractors and 
workers when they are not paid, delays in a project's completion, 
litigation costs, and additional expenses related to contract 
administrative actions to secure resources needed to continue the

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construction project and make up for schedule delays. More information 
is needed to quantify these costs and the potential mitigating impacts 
of this rule.
    DoD, GSA, and NASA welcome public input to help more fully 
understand the impact of this regulation on affected parties. DoD, GSA, 
and NASA lack data on individual sureties, but believe based on 
interviews of contracting officials of major construction operations at 
the Naval Facilities Engineering Command, and GSA's Public Building 
Service, DoD, and GSA that individual sureties are used far less 
frequently than corporate sureties. In addition to input from any 
subject matter experts, DoD, GSA, and NASA invite input from affected 
parties, including the following:
    1. For subcontractors and suppliers on Federal construction and 
other projects that require prime contractors to obtain sureties--
    a. What positive or negative impacts do you anticipate the new 
rules will have on your work?
    b. To what extent might SBA's SBG Program provide an alternative 
option to individual sureties?
    c. Do you agree that subcontractors may see reduced burden because 
they will not need to take the same level of precaution to protect 
against fraud and abuse by individual sureties, when individual 
sureties are used? If not, why not?
    2. For individual sureties--
    a. What additional burden may be created for individual sureties 
who decide to convert their assets into the kind that qualify under the 
new legislation?
    b. What would be the impact, in terms of time, effort, and cost, 
for individual sureties to convert their assets into the kind that 
qualify under the new legislation?
    3. For prime contractors that currently rely on individual 
sureties--
    a. Do you anticipate greater difficulty obtaining necessary surety 
bonds? If so, why?
    b. Have you experienced challenges with individual sureties? If so, 
what was the nature of the challenges?
    c. Do you expect fees charged by individual sureties to be impacted 
under the new rule?
    d. To what extent might SBA's SBG Program provide an alternative 
option to individual sureties?
    DoD, GSA, and NASA have calculated the cost of regulatory 
familiarization with the new process, based on FPDS data for FY 2017, 
estimating that for the first year 5 entities will be subject to the 
new requirements, 1 hour per entity; and due to turnover and new 
entrants, 20 percent of that amount in subsequent years. The estimated 
public cost for familiarization, calculated in 2016 dollars at a 7 
percent discount rate in perpetuity is as follows:

Annualized--$40.75
Present Value--$582.08

V. Executive Orders 12866 and 13563

    Executive Orders (E.O.s) 12866 and 13563 direct agencies to assess 
all costs and benefits of available regulatory alternatives and, if 
regulation is necessary, to select regulatory approaches that maximize 
net benefits (including potential economic, environmental, public 
health and safety effects, distributive impacts, and equity). E.O. 
13563 emphasizes the importance of quantifying both costs and benefits, 
of reducing costs, of harmonizing rules, and of promoting flexibility. 
This rule is a significant regulatory action and therefore, this rule 
was subject to the review of the Office of Information and Regulatory 
Affairs under section 6(b) of E.O. 12866. This rule is not a major rule 
under 5 U.S.C. 804.

VI. Executive Order 13771

    This rule is considered an E.O. 13771 regulatory action. Details on 
the expected impact on the public can be found in Section IV of this 
preamble.

VII. Regulatory Flexibility Act

    DoD, GSA, and NASA do not expect this proposed rule to have a 
significant economic impact on a substantial number of small entities 
within the meaning of the Regulatory Flexibility Act, 5 U.S.C. 601, et 
seq. However, an Initial Regulatory Flexibility Analysis (IRFA) has 
been performed and is summarized as follows:

    The rule proposes to amend the Federal Acquisition Regulation 
(FAR) to change the kinds of assets that individual sureties must 
pledge as security for their individual surety bonds.
    The objective of the FAR rule is to implement section 874 of the 
National Defense Authorization Act (NDAA) for Fiscal Year 2016 
(FY16)(Pub. L. 114-92), which adds 31 U.S.C. 9310, Individual 
sureties, which limits the security for an individual surety bond to 
eligible obligations, i.e., cash and/or Government obligations. This 
section was intended to strengthen coverage for individual sureties, 
thereby mitigating risk to the Government. The legal basis for this 
rule is 40 U.S.C. 121(c), 10 U.S.C. chapter 137, and 51 U.S.C. 
20113.
    The proposed rule applies to all offerors and contractors who 
wish to use an individual surety as security for bonds required 
under a solicitation/contract for supplies or services (including 
construction). The number of solicitations and contracts requiring 
the submission of bid guarantees, performance, or payment bonds, 
correlate roughly to the number of contract awards containing FAR 
clause 52.228-11, Pledge of Assets. Based on FY 2017 data contained 
in EDA, 8,603 DoD contract awards, containing FAR clause 52.228-11 
with an obligated amount of over $35,000, were made to 1,990 unique 
vendors; of these 1,672 were small business entities. These 
contractors could be using corporate sureties under 28.202, 
individual sureties under 28.203, or pledging the contractor's own 
assets under 28.204; this FAR case only covers individual sureties 
under 28.203. Therefore, based on contracting officers' experience 
in the field DoD, GSA, and NASA estimate that less than 0.1 percent 
of contractors are using individual sureties to meet the required 
bonding under contracts.
    The proposed rule does not include additional reporting or 
record keeping requirements. Although the proposed rule creates a 
new provision to distinguish instructions to offerors from 
instructions to a contractor by relocating the ``offeror'' language 
from the existing FAR clause at 52.228-11, Pledge of Assets, the net 
effect of projected reporting and recordkeeping is unchanged. The 
use of Standard Form 28, Affidavit of Individual Surety, an existing 
reporting requirement under 52.228-11, is covered under the Office 
of Management and Budget (OMB) Control No. 9000-0001. The SF 28 is 
revised as a result of this rule. However, this will have a 
negligible impact on offerors, contractors, and respondents.
    The effect on small business is that individual sureties will no 
longer be able to pledge real property, corporate stocks, corporate 
bonds, or irrevocable letters of credit. DoD, GSA, and NASA 
anticipate that some individual sureties may not want to transform 
their assets into the kind that qualify under the new legislation, 
and so there will be fewer individual sureties available to meet the 
needs of small business offerors/contractors. This may mean that 
some small businesses that have been using individual sureties will 
have their costs change, as they go to a different individual 
surety, or to a corporate surety.
    The rule does not duplicate, overlap, or conflict with any other 
Federal rules.
    There are no available alternatives to the proposed rule to 
accomplish the desired objective of the statute. DoD, GSA, and NASA 
do not expect this proposed rule to have a significant economic 
impact on a substantial number of small entities because this only 
applies to (1) offerors and contractors who are using an individual 
surety as security for bonds required under a solicitation/contract 
for supplies or services (including construction), and (2) 
individual sureties, a small number of whom may not want to 
transform their assets into the kind that qualify under the new 
legislation.

    The Regulatory Secretariat Division has submitted a copy of the 
IRFA to the Chief Counsel for Advocacy of the Small Business 
Administration. A copy of the IRFA may be obtained from the Regulatory 
Secretariat Division. DoD, GSA and NASA invite comments from small 
business concerns and other

[[Page 7914]]

interested parties on the expected impact of this rule on small 
entities.
    DoD, GSA, and NASA will also consider comments from small entities 
concerning the existing regulations in subparts affected by this rule 
consistent with 5 U.S.C. 610. Interested parties must submit such 
comments separately and should cite 5 U.S.C. 610 (FAR Case 2017-003) in 
correspondence.

VIII. Paperwork Reduction Act

    The Paperwork Reduction Act (44 U.S.C. Chapter 35) does apply; 
however, the proposed changes to the FAR do not impose additional 
information collection requirements. This rule proposes to modify the 
Standard Form (SF) 28, which is used by all executive agencies to 
obtain information from individuals wishing to serve as sureties to 
Government bonds. However, the modification merely updates the language 
in the form to be consistent with the changes to the FAR text; it will 
have no impact on offerors or contractors. The modification of the SF 
28 does not impose additional information collection requirements to 
the paperwork burden previously approved under OMB Control Number 9000-
0001, Standard Form 28, Affidavit of Individual Surety.

List of Subjects in 48 CFR Parts 19, 28, 32, 52, and 53

    Government procurement.

William F. Clark,
Director, Office of Government-wide Acquisition Policy, Office of 
Acquisition Policy, Office of Government-wide Policy.

    Therefore, DoD, GSA, and NASA are proposing to amend 48 CFR parts 
19, 28, 32, 52, and 53 as set forth below:

0
1. The authority citation for 48 CFR parts 19, 28, 32, 52, and 53 
continues to read as follows:

    Authority:  40 U.S.C. 121(c); 10 U.S.C. chapter 137; and 51 
U.S.C. 20113.

PART 19--SMALL BUSINESS PROGRAMS


19.602-1   [Amended]

0
2. Amend section 19.602-1 by removing from paragraph (a) ``and 
28.203(c))'' and adding ``and 28.203-1(e))'' in its place.

PART 28--BONDS AND INSURANCE


28.102-2   [Amended]

0
3. Amend section 28.102-2 by removing from paragraph (e) ``of 28.203-
5(c)'' and adding ``of 28.203-3(c)'' in its place.
0
4. Amend section 28.106-1 by removing paragraph (o); redesignating 
paragraph (p) as paragraph (o); and revising the new redesignated 
paragraph (o) to read as follows.


28.106-1   Bonds and bond related forms.

* * * * *
    (o) OF 91, Release of Personal Property from Escrow (see 28.203-3).
0
5. Amend section 28.202 by--
0
a. Revising paragraph (a)(1);
0
b. Revising the first sentence of paragraph (a)(2);
0
c. Removing from paragraph (a)(3) ``Department of the Treasury 
regulations'' and adding ``Department of the Treasury (Treasury) 
regulations'' in its place;
0
d. Removing from paragraph (a)(4) ``Standard Form 273'', ``Standard 
Form 274'' and ``Standard Form 275'' and adding ``Standard Form (SF) 
273'', ``SF 274'', and ``SF 275'' in their places, respectively
0
e. Revising the first sentence of paragraph (c); and
0
f. Revising paragraph (d) to read as follows:


28.202   Acceptability of corporate sureties.

    (a)(1) Corporate sureties offered for bonds furnished with 
contracts performed in the United States or its outlying areas must 
appear on the list contained in the Department of the Treasury's 
Listing of Approved Sureties (Treasury Department Circular 570), 
``Companies Holding Certificates of Authority as Acceptable Sureties on 
Federal Bonds and as Acceptable Reinsuring Companies.''
    (2) The penal amount of the bond should not exceed the surety's 
underwriting limit stated in the Treasury Department Circular 570. * * 
*
* * * * *
    (c) Treasury issues supplements to Treasury Department Circular 
570, notifying all Federal agencies of new approved corporate surety 
companies and the termination of the authority of any specific 
corporate surety to qualify as a surety on Federal bonds. * * *
    (d) Treasury Department Circular 570 may be obtained from the U.S. 
Department of the Treasury, Bureau of the Fiscal Service, Surety Bond 
Branch, 3201 Pennsy Drive, Building E, Landover, MD 20785. Or via the 
internet at https://www.fiscal.treasury.gov/fsreports/ref/suretyBnd/c570.htm.
0
6. Revise the section 28.203 to read as follows:


28.203   Individual sureties.


28.203-1   Acceptability of individual sureties.

    (a) An individual surety is acceptable for all types of bonds 
except position schedule bonds.
    Assets pledged by an individual surety shall meet the eligibility 
requirements of Treasury's Bureau of the Fiscal Service. Per 31 U.S.C. 
9310, individual sureties must pledge eligible obligations, which 
Treasury refers to as acceptable collateral or eligible collateral. A 
list of acceptable assets, entitled ``Acceptable Collateral for 31 CFR 
PART 225,'' is available at https://www.treasurydirect.gov/instit/statreg/collateral/2018Final225ListofAcceptableCollateral.pdf.
    (b)(1) An individual surety shall execute the bond (e.g., bid bond 
(SF 24), performance bond (SF 25), payment bond (SF 25A)).
    (2) The net adjusted value of unencumbered assets is their market 
value minus the margin. The margin tables are available at 
www.treasurydirect.gov. The net adjusted value of unencumbered assets 
pledged by the individual surety must equal or exceed the penal amount 
(i.e., face value) of each bond.
    (3) The individual surety shall execute the SF 28, Affidavit of 
Individual Surety, and provide a security interest. One individual 
surety is adequate support for a bond, provided the net adjusted value 
of unencumbered assets pledged by that individual surety equals or 
exceeds the amount of the bond.
    (4) An offeror or contractor may submit up to three individual 
sureties for each bond, in which case the net adjusted value of the 
pledged unencumbered assets, when combined, must equal or exceed the 
penal amount of the bond. Each individual surety is jointly and 
severally liable to the extent of the penal amount of the bond.
    (c) Using the information from the SF 28 submitted by the offeror 
or contractor, the contracting officer shall notify the Treasury's 
collateral operations support team by email at [email protected] 
or by phone at 888-568-7343, of the individual surety, the assets to be 
pledged, and the amount necessary to cover the individual surety bond, 
i.e., the required amount to be collateralized. If after 3 business 
days the contracting officer has not received a response from Treasury, 
the contracting officer may seek assistance from the Director, Bank 
Policy and Oversight, at 202-504-3502. Treasury will advise the 
contracting officer whether the assets are eligible to be pledged, 
consistent with 28.203-1(a), and of the valuation of the assets offered 
to be pledged, consistent with the valuation standards in 28.203-
1(b)(2). The contracting officer shall determine whether the individual 
surety bond is acceptable as to the amount necessary to

[[Page 7915]]

cover the individual surety bond based on the asset eligibility and 
valuation assessment from Treasury. The contracting officer shall 
notify both the offeror or contractor and the individual surety of this 
determination.
    (d) If the contracting officer determines the individual surety is 
acceptable, the contracting officer shall request the Treasury's 
collateral operations support team set up the necessary individual 
surety pledged asset collateral account.
    (e) If the contracting officer determines that no individual surety 
in support of a bid guarantee is acceptable, the offeror utilizing the 
individual surety shall be rejected as nonresponsible, except as 
provided in 28.101-4. A finding of nonresponsibility based on 
unacceptability of an individual surety, need not be referred to the 
Small Business Administration for a Certificate of Competency. (See 
19.602-1(a) and 61 Comp. Gen. 456 (1982).)
    (f) If a contractor submits an unacceptable individual surety, or 
one that Treasury could not assess the asset eligibility and valuation 
within a reasonable time, then the contracting officer may permit the 
contractor to substitute an acceptable surety within a reasonable time.
    (g) Evidence of possible criminal or fraudulent activities by an 
individual surety shall be referred to the appropriate agency official 
in accordance with agency procedures.


28.203-2   Substitution of assets.

    An individual surety may request the Government to accept a 
substitute asset for that currently pledged by submitting a written 
request, including a revised SF 28, to the responsible contracting 
officer. Following the requirements set forth in 28.203-1, the 
contracting officer may agree to the substitution of assets upon 
determining, that the substitute assets to be pledged are adequate to 
protect the outstanding bond or guarantee obligations.


28.203-3   Release of security interest.

    (a) After consultation with legal counsel, the contracting officer 
shall release the security interest on the individual surety's assets 
using the Optional Form 91, Release of Personal Property from Escrow, 
or a similar release as soon as possible consistent with the conditions 
in subparagraphs (a) (1) and (2) of this section. A surety's assets 
pledged in support of a payment bond may be released to a subcontractor 
or supplier upon Government receipt of a Federal district court 
judgment, or a sworn statement by the subcontractor or supplier that 
the claim is correct along with a notarized authorization of the 
release by the surety stating that it approves of such release.
    (1) Contracts subject to the Bonds statute. See section 1.110 and 
paragraph (a) of section 28.102-1. The security interest shall be 
maintained for the later of (i) one year following final payment, (ii) 
until completion of any warranty period (applicable only to performance 
bonds), or (iii) pending resolution of all claims filed against the 
payment bond during the 1 year period following final payment.
    (2) Contracts subject to alternative payment protection. See 
paragraph (b)(1) of section 28.102-1. The security interest shall be 
maintained for the full contract performance period plus one year.
    (3) Other contracts not subject to the Bonds statute. The security 
interest shall be maintained for 90 days following final payment or 
until completion of any warranty period (applicable only to performance 
bonds), whichever is later.
    (b) Upon written request by the individual surety, the contracting 
officer may release the security interest on the individual surety's 
assets in support of a bid guarantee based upon evidence that the offer 
supported by the individual surety will not result in contract award.
    (c) Upon written request by the individual surety, the contracting 
officer may release a portion of the security interest on the 
individual surety's assets based upon substantial performance of the 
contractor's obligations under its performance bond. Release of the 
security interest in support of a payment bond must comply with the 
subparagraphs (a)(1) through (3) of this section. In making this 
determination, the contracting officer will give consideration as to 
whether the unreleased portion of the security is sufficient to cover 
the remaining contract obligations, including payments to 
subcontractors and other potential liabilities. The individual surety 
shall, as a condition of the partial release, furnish an affidavit 
agreeing that the release of such assets does not relieve the 
individual surety of its obligations under the bond(s).


28.203-4   Solicitation provision and contract clause.

    (a) Insert the provision at 52.228-XX, Individual Surety--Pledge of 
Assets (Bid Guarantee), in solicitations which require the submission 
of a bid guarantee.
    (b) Insert the clause at 52.228-11, Individual Surety--Pledge of 
Assets, in solicitations and contracts which require the submission of 
performance, or payment bonds.


28.203-5   Exclusion of individual sureties.

    (a) An individual may be excluded from acting as a surety on bonds 
submitted by offerors on procurement by the executive branch of the 
Federal Government, by the acquiring agency's head or designee 
utilizing the procedures in subpart 9.4. The exclusion shall be for the 
purpose of protecting the Government.
    (b) An individual may be excluded for any of the following causes:
    (1) Failure to fulfill the obligations under any bond.
    (2) Failure to disclose all bond obligations.
    (3) Misrepresentation of the value of available assets or 
outstanding liabilities.
    (4) Any false or misleading statement, signature or representation 
on a bond or affidavit of individual suretyship.
    (5) Any other cause affecting responsibility as a surety of such 
serious and compelling nature as may be determined to warrant 
exclusion.
    (c) An individual surety excluded pursuant to this section shall be 
entered as an exclusion in the System for Award Management (see 9.404).
    (d) Contracting officers shall not accept the bonds of individual 
sureties whose names appear in an active exclusion record in the System 
for Award Management (see 9.404), unless the acquiring agency's head or 
a designee states in writing the compelling reasons justifying 
acceptance.
    (e) An exclusion of an individual surety under this section will 
also preclude such party from acting as a contractor in accordance with 
subpart 9.4.


28.204   [Amended]

    7. Amend section 28.404 by removing from paragraph (b) ``lien in 
28.203-5(c)'' and adding ``security in 28.203-3(c)'' in its place.


28.204-1   [Amended]

0
8. Amend section 28.204-1 by removing from the first sentence of the 
text ``dated July 1, 1978''.

PART 32--CONTRACT FINANCING


32.202-4   [Amended]

0
9. Amend section 32.202-4 by removing from paragraph (c) ``28.203-2, 
28.203-3, and'' and adding ``28.203 and'' in its place.

[[Page 7916]]

PART 52--SOLICITATION PROVISIONS AND CONTRACT CLAUSES

0
10. Add section 52.228-XX to read as follows:


52.228-XX   Individual Surety--Pledge of Assets (Bid Guarantee).

    As prescribed in 28.203-4(a), insert the following provision:

Individual Surety--Pledge of Assets (Bid Guarantee) (Date)

    (a) Offerors shall obtain from each person acting as an 
individual surety on a bid guarantee--
    (1) A pledge of assets that meets the eligibility, valuation, 
and security requirements described in the Federal Acquisition 
Regulation (FAR) 28.203-1; and
    (2) Standard Form 28, Affidavit of Individual Surety.
    (b) The Offeror shall include with its offer the information 
required at paragraph (a) of this provision within the time frame 
specified in the provision at FAR 52.228-1, Bid Guarantee, or as 
otherwise established by the Contracting Officer.
    (c) The Contracting Officer may release the security interest on 
the individual surety's assets in support of a bid guarantee based 
upon evidence that the offer supported by the individual surety will 
not result in contract award.

    (End of provision)
0
11. Revise section 52.228-11 and section heading to read as follows:


52.228-11   Individual Surety--Pledges of Assets.

    As prescribed in 28.203-4(b), insert the following clause:

Individual Surety--Pledges of Assets (Date)

    (a) The Contractor shall obtain from each person acting as an 
individual surety on a performance bond or a payment bond--
    (1) A pledge of assets that meets the eligibility, valuation, 
and security requirements described in the Federal Acquisition 
Regulation (FAR) 28.203-1; and (2) Standard Form 28, Affidavit of 
Individual Surety.
    (b) The Contracting Officer may release a portion of the 
security interest on the individual surety's assets based upon 
substantial performance of the Contractor's obligations under its 
performance bond. The security interest in support of a performance 
bond shall be maintained--
    (1) Contracts for the construction, alteration, or repair of any 
public building or public work of the Federal Government exceeding 
$150,000 (40 U.S.C. 3131). Until completion of any warranty period, 
or for one year following final payment, whichever is later.
    (2) Contracts subject to alternative payment protection (see FAR 
28.102-1(b)(1)). For the full contract performance period plus one 
year.
    (3) Other contracts not subject to the requirements of paragraph 
(b)(1) of this clause. Until completion of any warranty period, or 
for 90 days following final payment, whichever is later.
    (c) A surety's assets pledged in support of a payment bond may 
be released to a subcontractor or supplier upon Government receipt 
of a Federal district court judgment, or a sworn statement by the 
subcontractor or supplier that the claim is correct along with a 
notarized authorization of the release by the surety stating that it 
approves of such release. The security interest on the individual 
surety's assets in support of a payment bond shall be maintained--
    (1) Contracts for the construction, alteration, or repair of any 
public building or public work of the Federal Government exceeding 
$150,000 which require performance and payment bonds (40 U.S.C. 
3131). For one year following final payment, or until resolution of 
all pending claims filed against the payment bond during the 1-year 
period following final payment, whichever is later.
    (2) Contracts subject to alternative payment protection (see FAR 
28.102-1(b)(1)). For the full contract performance period plus one 
year.
    (3) Other contracts not subject to the requirements of paragraph 
(c)(1) of this clause. For 90 days following final payment.
    (d) The Contracting Officer may allow the Contractor to 
substitute an individual surety, for a performance or payment bond, 
after contract award. The Contractor shall comply with the 
requirements of paragraph (a) of this clause within the time frame 
established by the Contracting Officer.

    (End of clause)

PART 53--FORMS


53.228   [Amended]

0
12. Amend section 53.228 by--
0
a. Removing from paragraph (e) ``(Rev. 6/2003)'' and ``28.203(b).)'' 
and adding ````(Rev. Date)'' and ``28.203-1(b)(3).)'' in their places, 
respectively;
0
b. Removing paragraph (o);
0
c. Redesignating paragraph (p) as paragraph (o); and
0
d. Removing from the newly redesignated paragraph (o) ``(See 28.106-
1(p) and 28.203-5(a).)'' and adding ``(See 28.106-1(o) and 28.203-
3(a).)'' in its place.


53.300   [Amended]

0
13. Amend section 53.300 by removing from the table 53-1 in paragraph 
(a) ``OF 90 Release of Lien on Real Property.''
[FR Doc. 2020-02655 Filed 2-11-20; 8:45 am]
 BILLING CODE 6820-EP-P